If you kept the tolls at their optimal level, it would actually reduce congestion, allowing more vehicle-miles per hour on the same amount of pavement. Far from "choking off" traffic it would actually make highways more efficient for those who choose to drive.

Barriers to entry apply very strongly here though too. In my case, I've never applied for the pass because I don't feel like I take 85 enough / would use the lexus lanes, and applying and having $20 at the state at any given time seems inconvenient.